System Access Issue Paper (Draft)

Regional Transit Long-Range Plan Update System Access Issue Paper (Draft) 401 South Jackson Street Seattle, WA 98104-2826 October, 2014

Sys tem Acc ess Iss ue Pape r (Dra ft) Contents 1 Executive Summary --------------------------------------------------------------------------------------------- 1 2 Long-Range Plan Update: System Access ------------------------------------------------------------------- 3 2.1 Purpose of this issue paper ---------------------------------------------------------------------------- 3 2.2 Issue paper overview ----------------------------------------------------------------------------------- 3 2.3 Long-Range Plan comments on system access ----------------------------------------------------- 3 3 Existing Access-related Guidance ----------------------------------------------------------------------------- 5 3.1 Sound Transit access policies, programs, guidelines, and standards ---------------------------- 5 3.1.1 Sound Transit design criteria for passenger facilities ------------------------------------- 5 3.1.2 Sounder Stations Access Study report ------------------------------------------------------ 8 3.2 Current system access development and funding -------------------------------------------------- 8 3.2.1 Park-and-ride facilities ------------------------------------------------------------------------- 8 3.2.2 Paratransit vehicle bays ----------------------------------------------------------------------- 9 3.2.3 Individuals with disabilities self-driver ----------------------------------------------------- 9 3.2.4 Pick-up and drop-off zones ------------------------------------------------------------------- 9 3.2.5 Bus service -------------------------------------------------------------------------------------- 9 3.2.6 Pedestrian and bicycle access -------------------------------------------------------------- 10 3.2.7 Americans with Disabilities Act accessibility ---------------------------------------------- 10 3.3 Direction for access improvements ----------------------------------------------------------------- 11 3.3.1 2005 Long-Range Plan and ST2 ----------------------------------------------------------- 11 3.3.2 Federal Transit Administration ------------------------------------------------------------- 11 3.3.3 Station typology ------------------------------------------------------------------------------ 12 3.3.4 Consideration of access priority ------------------------------------------------------------ 13 3.4 Other access guidelines and studies local and federal ----------------------------------------- 13 4 Importance of Effective System Access -------------------------------------------------------------------- 14 4.1 Park-and-ride efficiency ------------------------------------------------------------------------------- 14 4.2 Local bus access --------------------------------------------------------------------------------------- 15 4.3 First and Last Mile conditions for pedestrians and bicycles ------------------------------------- 15 4.4 Rider pick-ups and drop-offs ------------------------------------------------------------------------- 16 4.5 Reducing the cost of access-------------------------------------------------------------------------- 16 5 How Transit Agencies Address Access --------------------------------------------------------------------- 17 5.1 Station access planning tools ------------------------------------------------------------------------ 20 5.2 Mode of access data----------------------------------------------------------------------------------- 20 5.3 Station typology ---------------------------------------------------------------------------------------- 21 5.4 Access programs and funding of other transit systems ----------------------------------------- 22 5.4.1 Bay Area Rapid Transit ---------------------------------------------------------------------- 22 5.4.2 Washington Metropolitan Area Transit Authority ---------------------------------------- 22 5.4.3 Denver Regional Transit District ----------------------------------------------------------- 22 5.4.4 Tri-County Metropolitan Transportation District of Oregon ---------------------------- 22 5.4.5 Los Angeles County Metropolitan Transportation Authority --------------------------- 23 5.4.6 Chicago Regional Transportation Authority ---------------------------------------------- 23 5.4.7 GO Transit (Toronto, Ontario region) ----------------------------------------------------- 23 Octobe r, 2014 i

Regio na l T ran sit Lon g -Range Plan Upda te 6 Future System Access Planning by Sound Transit -------------------------------------------------------- 24 6.1 Recent access-related initiatives by Sound Transit ----------------------------------------------- 24 6.1.1 North Link, Northgate Pedestrian Bridge ------------------------------------------------- 24 6.1.2 South Link, Angle Lake Station, park-and-ride with future conversion -------------- 25 6.1.3 Lynnwood Link Extension station area walk/bike shed analysis ---------------------- 25 6.1.4 Parking pricing pilot project ---------------------------------------------------------------- 26 6.1.5 Non-motorized connectivity analysis; evaluating pedestrian and bicycle access to transit ------------------------------------------------------------------------------ 26 6.2 Mode of access priorities ----------------------------------------------------------------------------- 27 6.3 Addressing access from planning through operations ------------------------------------------- 28 6.3.1 Long-Range Plan ----------------------------------------------------------------------------- 28 6.3.2 System planning ------------------------------------------------------------------------------ 28 6.3.3 Corridor planning ----------------------------------------------------------------------------- 31 6.3.4 Preliminary engineering --------------------------------------------------------------------- 32 6.3.5 Final design ----------------------------------------------------------------------------------- 33 6.3.6 Built and Operating Stations ---------------------------------------------------------------- 33 6.4 Funding mechanisms for delivery of access projects -------------------------------------------- 34 6.4.1 Access improvement eligibility ------------------------------------------------------------- 35 7 Conclusions ----------------------------------------------------------------------------------------------------- 37 7.1 Key conclusions ---------------------------------------------------------------------------------------- 37 7.2 Potential access-related changes -------------------------------------------------------------------- 38 8 References ------------------------------------------------------------------------------------------------------ 40 Figures Figure 1. Range of access modes by station typology -------------------------------------------------------- 12 Tables Table 1. Summary of possible system access planning and programming ---------------------------------- 2 Table 2. Summary of Sound Transit access policies, guidelines, and studies ------------------------------- 6 Table 3. Simplified station access typology and characteristics --------------------------------------------- 12 Table 4. Summary of current access guidelines and studies from other organizations ----------------- 13 Table 5. Approaches to station access highlights from TCRP case studies and additional follow-up --------------------------------------------------------------------------------------------------- 18 Table 6. Station location type and primary arrival modes ---------------------------------------------------- 20 Table 7. Average station access mode share by station type ----------------------------------------------- 21 Table 8. Planning and design methodology for system access at key stages in project development ----------------------------------------------------------------------------------------------- 29 Table 9. Potential funding mechanisms for access enhancement ------------------------------------------ 34 ii Octob er, 2014

Sys tem Acc ess Iss ue Pape r (Dra ft) Acronyms and Abbreviations ADA BART CIP EIS FTA GIS HCT LRT MOU PE/ED PSRC SDOT SEIS SEPA TCRP TNC TOD TRB TriMet WSDOT Americans with Disabilities Act Bay Area Rapid Transit capital improvement program environmental impact statement Federal Transit Administration geographic information system high-capacity transit light rail transit memorandum (or memoranda) of understanding preliminary engineering/engineering design Puget Sound Regional Council Seattle Department of Transportation supplemental environmental impact statement Washington State Environmental Policy Act Transportation Cooperative Research Program transportation network companies transit-oriented development Transportation Research Board Tri-County Metropolitan Transportation District of Oregon Washington State Department of Transportation Octobe r, 2014 iii

Sys tem Acc ess Iss ue Pape r (Dra ft) 1 Executive Summary This issue paper presents information regarding system access and how Sound Transit s planning and design efforts could better achieve the agency s goals and objectives, including making cost-effective access investments to attract ridership. Highlights from this issue paper and direction on potential changes for the 2014 Long-Range Plan Update are summarized in Table 1. Development of high-capacity transit (HCT) in the central Puget Sound region will provide high-quality mobility options for residents, workers, and visitors. The success of public transportation can often be limited by poor access to the system; for example, first and last mile access by bicycling and walking, as well as access by local transit and private vehicles. More effective system access can help achieve key outcomes, such as attracting ridership, reducing the cost of access, achieving sustainability goals, and contributing to community health. An assessment of existing access-related guidance was carried out for this issue paper to determine opportunities for improving access to Sound Transit s HCT system. This assessment was based on Sound Transit s current System Access Policy, past practices relating to access planning and design, and direction from design criteria and guidelines for Link, Sounder, and ST Express passenger facilities. The paper also includes an assessment of how access to the HCT system is funded. Typically, the access provided by park-and-ride facilities is budgeted as a capital investment programmed with the station, while access provided for relatively smaller pedestrian, bicycle, and transit access may be limited or difficult to define in early stages of project planning. Pedestrian, bicycle, and transit access items have typically been identified during the design of a station and within any roadways reconstructed with the station design, but not beyond. While park and ride access is crucial to many Sound Transit riders, an added focus on access by more sustainable modes including bicycling, walking and transit early in project planning has the potential to attract riders at a lower cost to many future transit stations. Assessments of access improvements to attract HCT riders could be conducted at all stages of project planning and development and refined in more detailed engineering phases. Such analyses could be informed by station area typologies like those presented in this issue paper. These typologies recognize that HCT station areas differ in their land use, the street network, and the availability of local transit service. Further information regarding possible approaches to future system access planning and design was based in part on the experience of other transit systems. Of particular importance to this issue paper is how mode of access by station typology could address access relative to local conditions. Such information also sets the stage for consideration of potential mode of access into the future as the region seeks to develop transitsupportive communities. Octobe r, 2014 Page 1

Regio na l T ran sit Lon g -Range Plan Upda te Table 1. Summary of possible system access planning and programming No. Current approach Possible Improvements 1. Mode of access Planning and programming of access improvements occurred for existing Sounder stations as part of ST2. Current design criteria and guidelines list priorities for providing convenience and directness of routing at a station. The priority for Link is: pedestrian, paratransit, bicycle, bus service, drop off/pick-up modes, and the lowest priority is given to park-and-ride access. This priority has not been formalized in the early phase of project planning. 2. Focus of station access planning and design Under Sound Move and ST 2, access planning and design have generally occurred during alternatives analysis using concept designs and during preliminary engineering. 3. Costing of access elements Cost estimates for access are prepared for the station program. The cost of providing access for unique conditions or opportunities surrounding the station may be an add-on to the project with the cost addressed via project budget amendments. The scope control policy guides this process. 4. Implementation of planned access Access improvements that are programmed (e.g. existing Sounder Stations during ST2), and expectations on the part of local jurisdictions and other parties, are further studied and defined during project development. 5. Flexibility of station access Project planning and development can last more than 15 years. Thus, the station area characteristics influencing access elements could change substantially between system planning and project opening. Identify opportunities for emphasizing pedestrian, paratransit, and bicycle access, as well as accommodating feeder bus service, at HCT stations, recognizing the need to maximize ridership. Address parking and implement parking management at some stations. Work with jurisdictions to identify projects in their bicycle and pedestrian plans that improve station access and could be considered for incorporation into ST s projects during development and design. Communicate with bus transit agencies during system planning to anticipate layover and paratransit needs. Continue to regularly collect data on mode of access and use the data to support a shift to attracting riders who ride transit, bike or walk to stations. In concert with the revised focus of access planning and design, identify costs associated with all aspects of system access at all major stages of project development. The Long-Range Plan and agency policies provide guidance for access planning and programming to begin during system planning. Consider using station typologies. Develop a methodology during system planning to program access improvements to encourage walking, bicycling, and riding transit to stations. With programmed access funds in place, capture opportunities for access improvements in partnership with local jurisdictions and agencies during the corridor planning and preliminary design phase. Particular attention should be paid to needed to improvement at station areas for disabled accessibility. At each stage of project planning and development, identify a hand-off to the next stage. This hand-off should include key assumptions and expectations as well as documentation of direction and agreements between Sound Transit and other parties. At each stage of project development, review the station area typology to determine potential changes in access features or priorities. Page 2 Octob er, 2014

Sys tem Acc ess Iss ue Pape r (Dra ft) 2 Long-Range Plan Update: System Access Sound Transit is updating its Long-Range Plan for high-capacity transit (HCT) projects and services in the central Puget Sound region. As part of the update, a variety of access issues are being considered that will provide direction for Sound Transit s next system plan. 2.1 Purpose of this issue paper This issue paper is part of a series of papers prepared to inform the Sound Transit Board in its decisionmaking on the Regional Transit Long-Range Plan Update. The System Access Issue Paper addresses the following topics: Current Sound Transit System Access Policy (2013a), current practices relating to system access, and building upon successes Comparable transit agencies policies and approaches to enhancing system access, attracting additional riders to HCT stations, and reducing the cost of access The importance of system access to achieve Sound Transit goals A potential methodology for planning, programming, and funding of system access needs during development of the next System Plan An approach to considering access at key steps in HCT project development, and access enhancement project eligibility criteria Potential access policy changes for the Long-Range Plan Update 2.2 Issue paper overview In preparing this issue paper it is recognized that Sound Transit has existing policies and design criteria that provide direction for system access. This current direction is recognized in the development of potential approaches to future access considerations as documented in Section 6 of this paper. The framework for the issue paper also recognizes both constraints and opportunities relating to system access, particularly with regard to maximizing ridership potential at both existing and future HCT stations, potential costs, scope control, project schedules, and complexities of collaborative efforts with local jurisdictions, transit partners and other parties. 2.3 Long-Range Plan comments on system access The Sound Transit Board will update the region s Long-Range Plan after preparing the Final Supplemental Environmental Impact Statement (SEIS) under the State Environmental Policy Act (SEPA). During the formal scoping comment period, one of the themes that emerged was a desire for improved access to HCT stations, taking all modes into consideration. There were a number of system access-related themes, including the following: Improved transit connections Increased focus and improved planning and possible funding for bicycle and pedestrian access to station areas Improving access to, and integration among, transit systems and services Octobe r, 2014 Page 3

Regio na l T ran sit Lon g -Range Plan Upda te Serving populations equitably and concentrating on serving those areas with the highest ridership potential In June 2014, Sound Transit issued the Draft SEIS, initiating a 45-day public comment period that extended from June 13, 2014 to July 28, 2014. Over 500 submissions (including letters, emails, comment cards, and verbal statements) were received by Sound Transit. The themes were similar to those that emerged from the scoping comments. The most frequently cited access concern was a lack of access, including available parking at transit stations. There was also interest in improved access that would reduce the need to park at stations; examples include feeder bus service, improved pedestrian facilities in surrounding neighborhoods, and closer spacing of stations. Page 4 Octob er, 2014

Sys tem Acc ess Iss ue Pape r (Dra ft) 3 Existing Access-related Guidance Table 2 provides an overview of existing access-related guidance for Sound Transit. There are several sources of guidance relating to system access, including Sound Transit s System Access Policy and language in the agency s design criteria on access features. There is also external guidance such as the Americans with Disabilities Act and recent direction from the Federal Transit Administration. Any guidance on system access should recognize that station areas have varying land use conditions ranging from very dense downtowns to suburban low-density communities. Station area typologies, further described in Section 3.3.3, could potentially guide the provision of access modes for various land use conditions. The following sections further describe access-related guidance. 3.1 Sound Transit access policies, programs, guidelines, and standards Sound Transit adopted a System Access Policy in 2013, Resolution No. R2013-03. The System Access Policy (Sound Transit 2013a) establishes a broad framework for Sound Transit s support, management, and investment in infrastructure and facilities to provide access to its transit services. Sound Transit may make system accessrelated investments in its own transit facilities or in access infrastructure such as signage, and systems that are designed to effectively connect Sound Transit services with surrounding communities. The System Access Policy establishes general criteria to assess and prioritize potential access-improvement projects based on ridership, total cost of ownership or total lifecycle cost to Sound Transit, Sound Transit and local jurisdiction plans and planning documents, and public input. The 2013 System Access Policy also introduces parking management strategies as a tool to increase the efficiency of park-and-rides and increase access and ridership to high-capacity transit (HCT)., In 2014 Sound Transit completed a six-month permit parking pilot at the Mukilteo Station, the Issaquah Transit Center, the Sumner Station, and the Tukwila International Boulevard Station. The pilot provided hundreds of transit riders with assurance of parking during the busy morning rush while also providing Sound Transit with valuable data and customer input about pros and cons of a potential parking permit program. In another parking management program, Sound Transit customers will be able to use web and mobile applications to check availability of parking spaces in real-time at park-and-ride facilities. The apps will also suggest alternate parking locations if the preferred park-and-ride facility is full. By early 2015, this information will be available at the Puyallup Station, the Federal Way Transit Center, the South Everett Freeway Station, and the Auburn Station. In addition to the System Access Policy and follow-up management programs, several Sound Transit documents provide design guidelines and standards relating to system access. Recent access-related studies also provide methodologies for evaluating access and prioritizing improvements. These documents are summarized below and in Table 2. 3.1.1 Sound Transit design criteria for passenger facilities The Link Design Criteria Manual (Sound Transit 2013b) presents the most current statement of access priority for station planning and design. Pedestrians, paratransit, and bicycles are the highest priority in designing for convenience and directness of routing to stations, and park-and-rides are the lowest in the priority. Other Sound Transit design standards and guidelines address design of access at stations, accessibility design guidelines, and signage. Octobe r, 2014 Page 5

Regio na l T ran sit Lon g -Range Plan Upda te Table 2. Summary of Sound Transit access policies, guidelines, and studies Document Overview ST access guidance Resolution No. R2013-03 Attachment A: System Access Policy (Sound Transit 2013a) Transit-Oriented Development (TOD) Program Strategic Plan Update (Sound Transit 2014b) Link Design Criteria Manual (Sound Transit 2013b) Design Standards and Guidelines for Sound Transit Projects: Sounder & ST Express Passenger Facilities (Sound Transit 2013c) Sounder Stations Access Study (Sound Transit 2012a) Sounder Stations Access Study Appendix E: Sound Transit Access Tool (Sound Transit 2012b) Parking Pricing Study (Sound Transit 2010a) Bicycle Policy (Sound Transit 2010b) Establishes a framework for Sound Transit s support and management of, and investment in, infrastructure and facilities to provide customer access to its transit services. The Sound Transit TOD Program Strategic Plan, completed in 2010, introduced the adopted policy framework for the TOD work program within the larger context of Sound Transit s mission: implementation of regional high-capacity transit as detailed in Sound Move (1996), and Sound Transit 2 (2008). Changes in this Plan update include additional attention to the role of TOD in long-range and project planning. Design guidelines and standards for Link stations. Guiding principles address prioritization of park-and-ride capacity improvements, nonmotorized access to stations, bicycle parking, accessibility of bus transfers, bus layover space, and opportunities for joint investments with communities. Presents a thorough analysis for each mode of access to and from Sounder stations. Deficiencies are identified, including barriers to pedestrian access, a pedestrian and bicycle connectivity assessment within a 15-minute walk and bike shed, bicycle parking capacity, transit capacity at the station, vehicle and local network capacity, and park-and-ride capacity. Evaluation of improvements included factors such as cost per rider, ridership, leveraged investments, travel time and reliability, partnership potential, and environment. The tool is used to evaluate potential access improvements that could increase future ridership on Sounder service beyond that already forecast for the system, with shifts in mode of access and land use. The Mode of Access Tool was adapted from the TCRP B-38 Tool to the specific needs of Sound Transit. Evaluation of parking pricing strategies to better manage Sound Transit parking facilities for commuters and local jurisdictions. Better management would increase availability of parking for transit riders, and thus access to HCT from the park and ride. Provides policies for bringing bikes on Sound Transit vehicles, guidelines for bicycle equipment at stations, and guidelines for planning, designing, and funding bicycle access. Policy on parking management applies to both existing and new park-and-rides. Provides guidance on access improvements in cooperation with local jurisdictions and transit partners TOD goals emphasize non-motorized access to trains and buses to increase ridership. Guidance for all modes Designer should recognize any planned and existing pedestrian and bicycle routes within one-quarter mile of the station Includes ADA accessibility standards Detailed guidelines for each mode Designer should recognize any planned and existing pedestrian and bicycle routes within one-quarter mile of the station Design Review Checklist provided Includes ADA accessibility standards Specific station area improvements identified Access Deficiency Assessment identified needs within 15-minute walk/bike sheds Evaluation of new ridership associated with access improvements Improve access to HCT for park-and-ride users Maximize benefits from investment Potential benefit of parking revenue for other modes Guidelines for bicycles at ST facilities and on vehicles Planning and design in partnership within ½ mile of stations Page 6 Octob er, 2014

Sys tem Acc ess Iss ue Pape r (Dra ft) Table 2. Summary of Sound Transit access policies, guidelines, and studies (continued) Document Overview ST access guidance Accessibility Design Guidelines (Sound Transit 2009 ) Regional Transit Long- Range Plan (Sound Transit 2005) System-Wide Signage Design Manual (Sound Transit 2004a) Design guidelines provide direction for the design of all aspects of an HCT station to ensure the station provides ADA accessibility. The goal is to contribute to the region s economic vitality transit provides gateways that increase access to jobs, education, and other community resources and enhance the region s ability to move goods and services. The emphasis in this document is Accessibility for All and addresses wayfinding for all users. Detailed guidelines provided for all aspects of ADA accessibility Page 17 states This will include making improvements within one-quarter mile radius of each station for safe and easy transit, pedestrian, and bicycle access. Sound Transit will build such facilities after consulting with the local jurisdiction (s) Detailed ADA signage guidelines provided Octobe r, 2014 Page 7

Regio na l T ran sit Lon g -Range Plan Upda te Access is designed into each project almost exclusively within the station footprint and for any roadways that are reconstructed with the project. This ensures that the project is designed and constructed within budget and generally produces a stronger cost effectiveness rating for the Federal Transit Administration s New Starts grant criteria, assuming that the station location and design have the greatest potential to affect ridership. 3.1.2 Sounder Stations Access Study report The Sounder Stations Access Study was conducted for Sound Transit from 2010 to 2012 and published in September 2012 (Sound Transit 2012a). This study presents a detailed analysis for each mode of access to and from Sounder stations. The following elements are included in the study: A rider survey was conducted at each station to determine mode of access, including drive, drop-off, carpool, feeder transit, bike, and walk. Relevant local area plans were briefly summarized. A field review was conducted and observations were documented. An Access Deficiency Assessment was reported for each station. Deficiencies that could discourage ridership included, for example, barriers to pedestrian access. A pedestrian and bicycle connectivity assessment within a 15-minute travel shed was conducted that assessed bicycle parking capacity, transit capacity at the station, vehicle and local network capacity, and park-and-ride capacity. An evaluation of improvements was conducted and included factors such as cost per rider, ridership, leveraged investments, travel time and reliability, partnership potential, and environmental criteria. Potential improvements at each station were identified based on the data and analysis. Improvements that scored well included expanded drop-off/pick-up areas, a pedestrian bridge, sidewalks, bike lanes, additional bike racks, trails, and parking pricing. 3.2 Current system access development and funding The planning, funding, and design by Sound Transit for various modes of system access are summarized in the following sections. These modes include those that are programmed with an HCT station and those that are identified during preliminary engineering and environmental assessments for the project. In current practice, the package of access elements identified during system planning represents broad station elements such as platforms, plazas, and park-and-ride facilities. The station components and any park-and-ride facilities are placeholders used to establish an initial project budget, while setting the stage for subsequent project development. Representative cost estimates that occur during system planning are at a high level for potential corridor alignments and stations. Any access-related cost elements are usually limited to the station footprint. 3.2.1 Park-and-ride facilities Park-and-ride facilities are an important access feature, particularly in outlying and low-density areas. These areas do not usually have high concentrations of frequent local bus routes or high-density residential developments that would result in effective local bus and walk/bicycle access to the stations. The number of park-and-ride stalls is based in part on mode of access estimates from the travel forecasting model, siterelated factors such as availability of land for a facility, and local planning policies. Page 8 Octob er, 2014

Sys tem Acc ess Iss ue Pape r (Dra ft) Park-and-ride facilities have been included in project design and associated budgets during system planning and at subsequent phases of project development. As such, park-and-ride facilities and related access roads are included in the project footprint and accounted for in key phases of project development. Vehicular access to support park-and-ride facilities is also addressed early in the design process and can sometimes result in reconstruction of adjacent roadways and nearby intersections impacted by park-and-ride traffic. 3.2.2 Paratransit vehicle bays Station access by paratransit vehicles used by persons with disabilities is a key consideration in station design. The Link Design Criteria Manual (2013b) identifies paratransit as the second priority for providing convenience and directness of routing at stations. Accordingly, paratransit bays have been developed concurrently with station design. The paratransit bay is typically located adjacent to the station plaza and as close as possible to the station entrance. However, the space for paratransit bays is often constrained by the site dimensions and location of the station access roads. Sound Transit design criteria and guidelines do not currently address the number of paratransit bays. 3.2.3 Individuals with disabilities self-driver At HCT stations, parking for persons with disabilities who drive to the station can be provided on a surface park-and-ride lot adjacent to, or as near as possible to, the station entrances. Parking for persons with disabilities can also be provided within a park-and-ride garage. 3.2.4 Pick-up and drop-off zones It is desirable to locate pick-up and drop-off zones as close as possible to station entrances. Drop-off and pick-up may occur along curb space or in a park-and-ride facility located within the station area. In practice, drop-off often occurs wherever drivers perceive it as most convenient. Pick-up also occurs within park-andride facilities where the driver waits for the arriving passenger. These passenger pick-ups usually occur in the p.m. period when park-and-ride spaces become more available for short-term use. Two additional factors could affect future provision of pick-up/drop-off facilities at HCT stations. If Sound Transit charges for parking, this could limit the availability of parking stalls for short-term use. Also, emerging ridesharing modes such as transportation network companies (TNC) could make use of more extensive pickup/drop-off facilities at HCT stations. While several coordination and regulatory issues would need to be addressed, these TNCs could become major contributors to HCT station access. 3.2.5 Bus service Bus service to HCT stations requires active and layover bus zones. Active bays are for in-service bus routes and are used by transit riders to board vehicles. Layover zones are provided in station areas for bus routes terminating at the station. Active bus bays can be on-street or off-street with off-street bays usually being located within transit centers. The necessary number of active and layover bus bays is based on service integration plans prepared by affected bus transit agencies. These plans identify routes that will be serving the station along with characteristics such as frequencies and associated bus volumes in the peak hour. These volumes provide a basis for estimating bus zone requirements at the station both active and layover. In practice, the service integration plans are used to estimate the number of active and layover spaces during preliminary engineering. The station design process includes circulation roadways for buses and locations for active bus bays near the station plaza. Under current practice, when service integration plans and estimates of bus bays are available, the bus bays are incorporated into site design. By the time bus bays are designed into the site, the HCT station, park-and-ride, surface lots, and driveways have already been located at a preliminary level. Site Octobe r, 2014 Page 9

Regio na l T ran sit Lon g -Range Plan Upda te constraints may pose challenges to achieving the desired number of bus bays. As noted above, an earlier involvement by local bus systems in station facility design could help provide direction on local transit access features as well as coordination with other access modes. 3.2.6 Pedestrian and bicycle access Encouraging riders to access transit facilities on foot or by bicycle can be a lower-cost approach to increase ridership. However, a lack of local connectivity and safety often creates barriers to walking and bicycling. In practice, pedestrian and bicycle access has been incorporated in station design and in any reconstructed roadways in the vicinity of the station. These are features that provide connections between station entrances and access modes. During the environmental assessment phase, there is rarely a negative environmental impact due to pedestrian and bicycle volume generated by the project beyond the station and reconstructed roadways. Therefore, access improvements that would improve connectivity or safety of facilities to nearby activity centers are usually not included in the station scope. Sound Transit design criteria and guidelines for Link, Sounder, and ST Express passenger facilities include language on station access. Site design constraints often result in the need for design decisions to prioritize certain modes over others. To address mode of access priorities and/or conflicts, a standard for prioritizing modes is included in Sound Transit s design criteria and standards for passenger facilities. The highest priority for station site design, for convenience and directness of routing, is given to pedestrians while the lowest priority is given to park-and-ride access. This is a flexible priority list that guides decision-making in order to meet agency policy and goals. In practice, the programmed access elements of HCT stations have been receiving the highest priority because they are considered as integral elements of the program. Also, major capital facilities near the station, such as a park and ride, can determine roadway improvements, intersection design, and intersection mitigation. For these considerations, they are included in the station s funding. HCT stations can generate a high volume of walk-related transfers between rail station entrances and bus zones, park-and-ride facilities, and pick-up/drop-off locations. This pedestrian volume determines sidewalk widths and bus shelter capacity. Roadways reconstructed with the project can incorporate wider sidewalks if the roadway is widened and rechannelized to accommodate vehicular traffic. However, a wide sidewalk and bus shelters may require additional right-of-way that is not accounted for in cost estimates until mid-way through preliminary design and environmental assessments for HCT stations. Bicycle facilities include both access to the station and secure bicycle parking. Sound Transit evaluates the availability of bicycle parking and may make adjustments in the availability of racks, cages, lockers, etc. as needed. Future facilities may include reserved space in the station footprint where bicycle parking can be added to meet demand. The assessment of potential bicycle-related demand can use a bicycle estimating methodology. Sound Transit currently estimates future bicycle-related demand at four percent of the anticipated autumn PM peak-hour station ridership to determine demand for bicycle facilities at HCT stations. 3.2.7 Americans with Disabilities Act accessibility The federal Americans with Disabilities Act (ADA) requires accessibility for people with disabilities and mandates accessible design. Sound Transit documents that establish design guidelines to meet ADA requirements are summarized in Table 2. ADA requirements are adhered to throughout the design process. Planning and design for pedestrian access improvements in older areas lacking in ADA compliance may be an additional cost factor for a project. Page 10 Octobe r, 20 14

Sys tem Acc ess Iss ue Pape r (Dra ft) 3.3 Direction for access improvements While Section 3.2 describes current access modes at HCT stations and an overview of how this access is developed, expanded access in the form of improvements beyond the station footprint or at existing stations could be considered. For the purposes of this issue paper, access improvements are defined as those improvements that have the potential to attract more riders to HCT. Access improvements could go beyond the surrounding roadways reconstructed with the station as well. While Sound Transit s System Access Policy addresses considerations for access improvements in cooperation with project partners, there are currently no adopted planning and programming procedures to identify and budget for these types of access enhancement projects. The following sections further describe current Sound Transit guidance relating to access improvements. 3.3.1 2005 Long-Range Plan and ST2 The 2005 LRP states that, Sound Transit works with local public transportation agencies, communities, and local governments to place and design transit facilities that easily fit with and improve local community plans. This will include making improvements within one-quarter-mile radius of each station for safe and easy transit, pedestrian, and bicycle access. Sound Transit will build such facilities after consulting with the local jurisdiction(s). In addition, the Design Standards and Guidelines for Sound Transit Projects: Sounder & ST Express Passenger Facilities (Sound Transit 2013c) states in Section 3.2.1 that, The designer should recognize any planned and existing pedestrian and bicycle routes within one-quarter mile of the station. Connections between these routes and the facility should be identified in access design. Potential bicycle access improvements are further directed by Sound Transit s Bicycle Policy (2010b). Section 4.6 states, Sound Transit works in partnership with interested parties to plan for and fund design, construction and maintenance of bicycle access facilities within a one-half mile radius of facilities served by Sound Transit, within established Sound Transit project scopes of work and budgets. Following the 2005 Long-Range Plan, a budget for access improvements was included in ST2. This budget item would have created a System Access Program to make investments. However, the access budget was eliminated during the most recent recession when Sound Transit s estimated revenue stream was severely reduced, and several major capital projects were deleted, deferred or truncated. Without a funding source, Sound Transit does not have the ability to capture opportunities for partnership projects except when a significant project is brought to the Sound Transit Board as a scope increase with a request for additional project budget. Examples of these requests include the Northgate Pedestrian Bridge over I-5 to provide access to the Northgate Station of North Link and the Overlake Village pedestrian-bicycle bridge over SR 520 to provide access the East Link station. Smaller, yet meaningful projects, such as a gap in the sidewalk system that would better connect an activity center to a station, also do not have a funding source. 3.3.2 Federal Transit Administration The Federal Transit Administration (FTA) issued a Final Policy Statement on the Eligibility of Pedestrian and Bicycle Improvements Under Federal Transit Law (Federal Register Vol. 76, NO. 161, August 2011). The purpose of the notice was to simplify the process for determining where a pedestrian or bicycle improvement qualifies for FTA funding. The policy statement defines a radius around a public transportation stop or station within which FTA will consider pedestrian and bicycle improvement to have a de facto functional relationship to public transportation. The radius for this functional relationship is one-half mile for pedestrians and 3 miles for bicyclists. Within these radii, a pedestrian or bicycle enhancement improvement may be eligible for FTA Octobe r, 2014 Page 11

Regio na l Tran sit Lon g -Range Plan Upda te funds. The establishment of this de facto functional relationship provides an opportunity for access improvements to be eligible projects for funding under the many competitive grant programs of FTA. 3.3.3 Station typology Potential access improvements should recognize that locations of HCT stations have varying features or typologies and associated access characteristics. Station typologies provide a general indication of the attributes and access/egress mode characteristics associated with the different station areas. A station typology could allow transit agencies to better adapt access decisions to the needs of individual stations by allowing evaluation criteria or goals to vary by station type. In practice, stations will seldom correlate with only a single station typology. Instead, most stations will share the characteristics of multiple types. Station typology provides a concept used to recognize the mix of modes that transit riders generally use to access various types of station areas, from central business districts to suburban low density areas. For purposes of discussion in this issue paper, the TCRPs simplified station typology model can be applied to existing and future stations in the Sound Transit district, as shown in Table 3. Figure 1 shows the range of access modes for the simplified station access typology. Table 3. Simplified station access typology and characteristics Access characteristics Station area type Examples Pedestrian and bicycle facilities Supporting transit network Parking facilities Central Business District Westlake Station, Bellevue Transit Center High-quality network; good connectivity High-level bus network at stations; some are intermodal facility/ transit hubs No off-street parking Urban medium to high density Othello Station, Mt. Baker, Roosevelt Station High-quality network; good connectivity Higher-level local bus connections No/limited offstreet parking Suburban low-density Tukwila International Boulevard Station, NE 145th Station Limited connectivity, some high-volume roadways Some local and regional bus connections Some off-street parking or parkand-ride available Terminal stations Angle Lake Station, Lynnwood Transit Center More difficult connections Some local regional bus connections especially during peak periods, employer shuttles, opportunities to truncate and integrate service Park-and-ride emphasis Special conditions Mukilteo Station (ferry), SeaTac/Airport Station Limited connectivity with emphasis on special facility Some local/regional bus connections Limited off-street parking may be available Special conditions station types may vary across this spectrum. Figure 1. Range of access modes by station typology Page 12 Octobe r, 20 14

Sys tem Acc ess Iss ue Pape r (Dra ft) 3.3.4 Consideration of access priority As noted in Section 3.2, the current priority for HCT station design emphasizes pedestrian, paratransit, and bicycle access at the highest level when designing for convenience and directness of routing, and park-andride access at the lowest level. However, in practice, the design process often addresses the programmed access first, usually vehicular access to the station such as park-and-ride or local bus facilities. In system planning, park-and-ride facilities or off-street bus zones tend to be considered first because they have space requirements and add significant cost to stations, and thus have programmed funding. A more comprehensive and inclusive approach to access could be developed that would address funding for potential access needs for all modes. The station typology would be applied to recognize the mix of access to be provided for stations, including access needs in areas still lacking in pedestrian-accessible land uses that support HCT ridership. The remaining sections of this issue paper provide further information on a potential approach for system access, including comparable efforts by other large HCT systems. 3.4 Other access guidelines and studies local and federal In addition to Sound Transit policies and guidelines, a number of local, regional, and federal sources have conducted studies or provide guidance on access, as described in Table 4. These policies, guidelines, and studies provide potential direction for approaches to access improvements, particularly in regard to joint efforts between Sound Transit and other organizations. Table 4. Summary of current access guidelines and studies from other organizations Document Overview Access enhancement Growing Transit Communities Strategy, Final Draft (PSRC 2013) Guidelines for Providing Access to Public Transportation Stations, TCRP Report 153 (TRB 2012) Final Policy Statement on the Eligibility of Pedestrian and Bicycle Improvements (FTA 2011) Keeping Seattle Moving: Planning around Light Rail stations (SDOT 2014a) Non-Motorized Connectivity Analysis; Evaluating Pedestrian and Bicycle Access to Transit (King County Metro/Sound Transit 2014) Includes four foundation strategies: a regional and local framework for partnerships; strategies to attract housing and employment growth; strategies to provide affordable housing choices; and strategies to increase access to opportunity. Provides design guidelines for each mode and a checklist of improvements at the approach to a station and within the station environment. Defines a radius around a public transportation stop or station within which FTA will consider pedestrian and bicycle improvements to have a de facto functional relationship to public transportation. Web page presenting the city s neighborhood station area planning for existing and future high-capacity transit stations. Includes profile sheets of concept-level station area planning. Assesses potential and priority locations where improvements can increase walk/bike access to bus stops and major routes in King County Regional Growth Centers, as well as Sound Transit stations and transit centers. Area profiles prepared to understand HCT station potential Checklist of improvements Potential improvements identified Pedestrian radius is one-half mile Bicycle radius is 3 miles Includes changes in zoning, land development patterns, station area profiles and market analysis Tool for assessing a range of potential pedestrian and bicycle access improvements Octobe r, 2014 Page 13